Marie Danielle Guillen
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A Study on Development of Local Public Transport Policy: The Case of Tricycles and “Habal-habal” in Davao City, Philippines Marie Danielle Guillen (Doctoral Program in Policy and Planning Sciences) Advised by Prof. Haruo Ishida Submitted to the Graduate School of Systems and Information Engineering in Partial Fulfillment of the Requirements for the Degree of Master of Policy and Planning Sciences at the University of Tsukuba February 2004 Abstract In developing countries like Thailand, Indonesia, Malaysia and Vietnam, motorcycles are part of the essential mode of transportation. In the case of the Philippines, motorcycle propelled public transport in the form of tricycles and/or “habal-habal”, also known in other countries as “motorcycle taxi” exists. The study illustrates the history and policy approach on rationalizing the informal transport services at the national and local level in the case of tricycles and “habal-habal”.The Philippine planning and policy system has two levels: national and local. At the national level, the study describes the development of local transport policy by integrating national policies (Land Transportation and Traffic Code, Public Service Act and the Local Government Code of 1991) and responses to related issues (congestion, etc) in devolving the government’s regulatory policy approach to the presence of tricycles. The study also illustrates the role of national transport related policies in the emergence of informal public transport such as “habal-habal” and open-can tricycles. Davao City, as a new and highly urbanizing area in the region of Mindanao was chosen as study site since it has a wide variation of motorcycle-propelled public transportation. Tricycles in the Philippines is legally classified as motor vehicle composed of a motorcycle fitted with a single wheel side- car or a motorcycle with a two- wheel cab operated to render transport to a general public for a fee. In Davao City, it can be found in the form of side-cab, center-cab and open cab. The latter, due to safety reason is considered illegal. Moreover, an emerging mode in the form motorcycle taxi mode known as “habal-habal” can also be found. The study described and classified the different types of motorcycle-propelled vehicles according to design, passenger loading capacity and legitimacy of operations. The local policy process review indicates that factors considered in policy development. This involved the presence of national policy guidelines, experience from the implementation of previous local policy as well as public inputs among others. Likewise, the local policy on tricycles were reviewed and further segregated according to its consequences such as its effect in local government/income generation, transportation service level, safety, congestion and environment. The former showed the issues and gaps in policy implementation while the latter present the importance of relating policies to local urban transport planning and management as well as local needs. ii Contents Chapter 1. Introduction…………………………………………………………..………1 1.1 Background……………………………………………………….. .. ..……...1 1.2 Motorcycle-propelled Public Transport: Related Problems and Issues………………………………………. ….…….4 1.3 The Study Area……………………………………………………………... 7 1.4 Objectives……………………………………………………………..…….12 1.5 The Methodology and Analytical Framework………………………..…… 12 1.6 ResearchStructure…………………………………………………….…….15 Chapter 2. Urban Transportation Planning: Concepts and Emerging Issues……..…… 16 2.1 Mobility and Modal Split…………………………………………………...17 2.2 Accessibility and Infrastructure…………………………………………….17 2.3 Congestion and Environmental Nuisance………………………………… .17 2.4 Level of Service…………………………………………………………….18 2.5 Equity and Employment……………………………………………… … ..18 2.6 Urban Transport Planning End-Objectives vis-à-vis Local Public Transport Policy Development……………………………….18 Chapter 3. Motorcycle-propelled Public Transportation in Developing Countries……………………………………………………………………20 3.1 Low-cost Transport………………………………………………………... 20 3.2 Motorized Intermediate Public Transport…………………………………..21 3.3 Paratransit…………………………………………………………………. .21 3.4 Informal Transportation in Developing Nations …………………… …... 23 3.5 Chapter Summary and Research Gaps……………………………………...28 Chapter 4. Motorcycle-propelled Public Transport in the Philippines…………….…..30 4.1 History of Philippine Tricycles……………………………………………..30 4.2 Issues and Problems on the Use of Tricycles as Local Public Transportation…………………………………………..….31 4.3 National Policies on the Operation of Tricycle………………….. …….….39 4.4 ChapterSummary…………………………………………………………..44 Chapter 5. Local Policy Development in Davao City: The Case of Tricycles and “Habal-habal”………………………………….46 5.1 The Motorcycle-propelled Public Transport in Davao City………………………………………………………….……48 5.1.1. The Standard and Center-cab Tricycles of. i Davao City: Description and Operating Characteristics………………………………………………….…...48 5.1.2. The Case of Open-cab Type of Tricycles and the Emergence of “Habal-habal”………………..…………………..52 5.1.3.Summary on the Operating Characteriistics of the Four (4) Types of Motorcycle-propelled Public Transportation……………………………………………….57 5.1.4. Tricycles and its Variations: Its role and Policy Implications………………………………………………….59 . 5.2. Local Transport Policy Development in Davao City………………………60 5.2.1 The City Government of Davao and Local Policy Development…………………………………….……60 5.3. Comparison of Local Transport Policy in Davao City and Metro Manila vis-à-vis the End Objectives of the Urban Transportation PlanningPrinciples………………………………….,……..65 5.3.1 Issues and Responses of the City of Davao on Tricycle Operation: AssessingOrdinance No. 1692…………………,……...67 5.4.Tricycles and its Variants and Local Public Transport Policy: Summary and Policy Implications………………,………73 Chapter 6. Summary, Conclusion and Recommendations…………………… … ,…...74 6.1 Summary…………………………………………………………….,……...74 6.2 Conclusion……………………………………………………………...…..,75 6.3 Recommendations………………………………………………..… …….,78 Acknowledgements………………………………………………………………………....80 Bibliography……………………………………………………………………………...…81 ii List of Figures Figure 1.1 Number of Motor Vehicles in Selected Southeast Asian Nation………….…2 Figure 1.2 Number of Registered Private and For Hire Motor Vehicles In the Philippines…………………………………………………………….6 Figure 1.3.1 Map of the Philippines and Davao City……………………………………...7 Figure 1.3.2 Number of Registered Motor Vehicles per Region in the Philippines 1991 vis-à-vis 2001……………………………………….8 Figure 1.3.3 Motor Vehicle Trend in Davao City 1990-2002…………………………....10 Figure 1.3.4 Type of Land-based Public Transport Service in Davao City 2003… …….11 Figure 1.3.5 Tricycles………………………………………………………………… ....11 Figure 1.3.6 Habal-habal………………………………………………………………... 11 Figure 1.5 Analytical Framework………………………………………………………13 Figure 1.6 Research Structure……………………………………………………….….15 Figure 3.3.1 “Bajaj” of Jakarta, Indonesia…………………………………………….. .. 22 Figure 3.3.2 “Tuktuk” of Bangkok,Thailand………………………………………….. .. 22 Figure 3.4.1 The “Rubjang” of Bangkok, Thailand……………………………………....25 Figure 3.4.2 “Ojek” Terminal in Indonesia…………………………………………….…25 Figure 4.1 Philippine Tricycles…………………………………………………………31 Figure 4.2.1 Tricycle Operating Expenses per Day (in percentage) 1992…………….….35 Figure 4.2.2 Registered No. of MC/TC vis-à-vis “Colorum” Tricycle Units,1990……....36 Figure 4.2.3 Different Types of Motorcycle-propelled Vehicles in the Philippines….….38 Figure 4.2.4 Registered Number of Motorcycles:Private vis-à-vis For Hire (Tricycles)…………………………………………………………39 Figure 4.3.1 Motorcycle and Tricycles Population in NCR,1980-2002………………… 41 Figure 4.3.2 Road Transport Registration and Regulation Structure……………………..43 Figure 5 Number of Motor Vehicles in Davao City 1990-2000………………….…..47 Figure 5.1.1. The Standard and Center-cab Tricycles of Davao City………………….. ...49 Figure 5.1.2 Distribution of Tricycles in Davao City………………………………… ... 51 Figure 5.1.3 Open-cab Tricycles in Davao City………………………………………. ...53 Figure 5.1.4 “Habal-habal or motorcycle taxis in Davao City………………………….. 56 Figure 5.1.5 Traffic Rules and Regulation Violation Report……………………………..57 Figure 5.2.1 The Policy Development Process in the Philippines and in the Local Government Unit Regarding Tricycles………………………………61 iii List of Tables Table 1.3.1 Tricycle Per Capita in the Philippines………………………………………9 Table 3.3.1 Physical Characterestics of Paratransit Modes in Some Developing Countries……………………………………………23 Table 3.4.1 Summary of Classes of Paratransit Vehicles that Operate Informally……...24 Table 3.4.2 Comparison of Motorcycle taxi in Selected Southeast Asian Case Studies………………………………………………………………………26 Table 3.4.3 Comparison on Policy Responses on the Emergence Of Motorcycle taxis in Bangkok and Jakarta……………………………..27 Table 3.4.4 Motorcycle taxi Driver`s Financial Performance…………………………28 Table 4.2 Some Identifed Health Effects of Air Pollution…………………………..33 Table 5.1.1 Comparative Description of Standard-type Tricycles And Center-cab types tricycles……………………………………………50 Table 5.1.2 Comparative Description of Open-cab type of tricycles And Habal-habal…………………………………………………………..54 Table 5.1.3 Operating Characteristics of Tricycles vs.Habal-habal ……………………58 Table 5.2.1 Agencies Involved in Transport-related Issues in Davao City……………...62 Table 5.2.2 Developments of Transport-related Local Policies in Davao City 1948-2001…………………………………………………..64 Table 5.3 Comparative Review of Metro Manila and Davao City`s Local Transport Policies vis-à-vis Urban Transportation Planning Objectives (1990-1994)…………………………………………………………………66